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EXECUTIVE SUMMARY

Topic: “A CRITICAL ANALYSIS OF EFFECTIVENESS AND IMPLEMENTATION OF

NREGA IN DISTRICT BALLIA”

The present report is prepared for the partial of M.B.A and as a part of curriculum. The
survey is an attempt to determine and “A Critical analysis and effectiveness and
implementation of NREGA in district BALLIA” To pursue research area are Lucknow
was chosen where the survey conducted through Personnel Interview.

The data collection is as analyzed and some practical tools were applied to get
inferences from the survey. The results are printed in the graphs and diagrams.

The conclusion is that NREGA is not success as should be

The research report has two sections in its first section history and objective behind is
given, where as second Research Methodology is given which includes sample design,
analysis on sample and presentation is in the form of diagram and charts.

Finally some Suggestions with respect to the survey for future improvement is given to
improve the survey because their competitors have also taken up the survey.

At the end of the report limitation, SWOT analysis, Conclusion of the research and
Appendix which include questionnaire and the list of the City where the Shriram Insight
Share Brokers Ltd are running. Last there is Bibliography, FAQ, and Glossary that has
the technical terms of the report. 

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OBJAECTIVE OF THE RESEARCH

 To find out the awareness about the NREGA in the rural area.

 To find out the effectiveness of NREGA in the rural area.

 To find out the job opportunity after come in the act of NREGA.

 To analysis the increasing level of living standard of the Rural labors.

 To know about the migration level after the implementing the NREGA.

RESEARCH METHODOLOGY

To achieve the objective of effective implementation of NREGA and analyses critically

that it programme is effective or not and how it can be more effective for the rural
development.

Research Design: 

This research is description of the state of affairs, as it exists at present. So in this

research I used the descriptive research.

Data Source:

In this research, I used primary data from the different labors, general concern persons,
Rojgyar sevak and Gram Pradhans, and secondary data from different magazines,
booklet and through internet.

Research Approach:
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Depth study of the investor’s perception with respect to equity investment.
Research Instrument:

Structured personal interview.

Type of Questions:

Open and close-ended question.

Sampling:

Public interested in investing their savings.  

Sample size: 100

Sample procedure: Judgment Sampling.

Contract Method: Personal structured interview. 

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 5
NATIONAL RURAL EMPLOYMENT GUARANTEE ACT
The National Rural Employment Guarantee Act or NREGA is an Indian job
guarantee scheme, enacted by legislation on August 25, 2005. The scheme provides a
legal guarantee for one hundred days of employment in every financial year to adult
members of any rural household willing to do public work-related unskilled manual work
at the statutory minimum wage of Rs.60 per day. The Central government outlay for
scheme is Rs. 39,100 crores ($8 billion) in FY 2009-10.

This act was introduced with an aim of improving the purchasing power of the rural
people, primarily semi or un-skilled work to people living in rural India, whether or not
they are below the poverty line. Around one-third of the stipulated work force is women.
The government is planning to open a call centre. Once operational, the call centre can
be approached on the toll-free number, 1800-345-22-44. It has been renamed as
Mahatma Gandhi Rural Employment Guarantee Act on 2nd October, 2009

Political background

The act was brought about by the UPA coalition government supported by the left
parties. The promise of this project was one of the major factors that gained UPA victory
in the Indian general election, 2004.

Dr. Jean Drèze, a Belgian born economist, at the Delhi School of Economics, has been
a major influence on this project.

The plan

The NREGA is an act and can be amended only by Parliament. The act directs state
governments to implement NREGA "schemes". Under the NREGA the Central
Government meets the cost towards the payment of wage, 3/4 of material cost and
some percentage of administrative cost. State Governments meet the cost of
unemployment allowance, 1/4 of material cost and administrative cost of State council.
Since the State Governments pay the unemployment allowance, they are heavily 6
incentivized to offer employment to workers. However, it is up to the State Government
to decide the amount of unemployment allowance, subject to the stipulation that it not
be less than 1/4th the minimum wage for the first 30 days, and not less than 1/2 the
minimum wage thereafter. 100 days of employment (or unemployment allowance) per
household must be provided to able and willing workers every financial year.

Process

Only Adult members of rural households submit their name, age and address with a
photo to the Gram Panchayat. The Panchayat registers households after verification
and issues a job card. The job card contains the details of the adult member enrolled
and his/her photo. A registered person can submit an application for work in writing (for
at least fourteen days of continuous work) either to the panchayat or to Programme
Officer.

The panchayat/programme officer accepts the valid application and issue a dated
receipt of application. A letter providing employment will be sent to the applicant and
also displayed at the panchayat office. Employment will be provided if possible within a
radius of 5 km; if it is above 5 km, transport allowance and 10% extra living allowance
will be paid. New public works can be started when at least 50 workers become
available who cannot be absorbed under existing schemes. If employment under the
scheme is not provided within fifteen days of receipt of the application daily
unemployment allowance will be paid to the applicant.

No discrimination between men and women is allowed under the act. Therefore, men
and women must be paid the same wage. All adults can apply for employment, not just
those below the poverty line.

History and Funding

The scheme started from February 2, 2006 in 200 districts, was expanded to cover
another 130 districts in 2007-2008 and eventually covered all 593 districts in India in
April 01, 2008. The outlay was Rs. 11,000 crores in 2006-2007, and has been rising 7
steeply, to Rs. 39,100 crores (140% increased amount respect of previous 2008-2009
budget) in 2009-2010.
Implementation

The Comptroller and Auditor General (CAG) of India, in its performance audit of the
implementation of NREGA have found "significant deficiencies" in the implementation of
the act. The plan was launched in February 2006 in 200 districts and eventually
extended to cover 593 districts. 4,49,40,870 rural households were provided jobs under
NREGA during 2008-09, with a national average of 48 working days per household.

Works/Activities

The NREGA achieves twin objectives of rural development and employment. The
NREGA stipulates that works must be targeted towards a set of specific rural
development activities such as: water conservation and harvesting, afforestation, rural
connectivity, flood control and protection such as construction and repair of
embankments, etc. Digging of new tanks/ponds, percolation tanks and construction of
small check dams are also given importance. The employed are given work such as
land leveling, tree plantation, etc.

Job guarantee

The Job Guarantee (JG) is an economic policy proposal aimed at providing a

sustainable solution to the dual problems of inflation and unemployment. Its aim is to
create full employment and price stability. The economic policy stance currently
dominant around the world uses unemployment as a policy tool to control inflation;
when cost pressures rise, the standard monetary policy carried out by the monetary
authority (central bank) tightens interest rates, creating a buffer stock of unemployed
people, which reduces wage demands, and ultimately inflation. When inflationary
expectations subside, these people will get their jobs back. It is also referred to as
employer of last resort (ELR), by analogy with lender of last resort.

Aam Aadmi
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Aam Aadmi (Hindi for "Common Man") is a term used primarily in India to refer to the
average Indian. Aam Aadmi is the Indian equivalent of Average Joe. "The common man
is marching ahead, every step of his makes India stronger" - the new slogan of Aam
Aadmi. For an Aam Aadmi, his sets of aspirations include three essential things: Food,
Clothing and Shelter.

In any country, there are two sets of people Aam and Khaas. The daily wage workers,
taxpayers, traders and retailers, salaried people, women and retired people are the
different segments of Aam Aadmi. They need a special care in the budget because they
deserve it. As Mahatma Gandhi said, "Democracy is the art and science of mobilizing
the entire physical, economic and spiritual resources of various sections of the people in
the service of the common good of all".

Aam Aadmi aims at the happiness of common man. The government must protect the
common man by providing subsidies on food and fertilizer. However, there are high
administrative costs of delivery in present subsidy scheme. The economists now opt
direct cash transfers to reduce administrative costs.

Aam Aadmi was introduced in 2004 by the Congress-led UPA government. It aims to
strengthen the Right to Information Act, National Rural Employment Guaranteed
Scheme, National Food Security Act and Bharat Nirman Yojana by way of economic
and social inclusion of every underprivileged section of society. No marginal groups are
excluded from the development process. Women, Scheduled Castes and Scheduled
Tribes belong to the marginal groups.

The Right to Information Act

The Right to Information Act 2005 is an Act to provide for setting out the practical
regime of right to information for citizens to secure access to information under the

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control of public authorities, in order to promote transparency and accountability in the
working of every public authority, the constitution of a Central Information Commission
and State Information Commissions and for matters connected therewith or incidental
thereto.
The Act specifies that citizens have the right to:

 Inspection of work, documents and records.

 Taking notes extracts or certified copies of documents or records.
 Taking certified samples of material.
 Obtaining information in the form of printouts, diskettes, floppies, tapes, video
cassettes 'or in any other electronic mode' or through printouts.

The Right to Information Act makes the common man up to date. His role in
government's decision-making process has been redefined by the Act. The Right to
Information Act is an effective tool to control corruption, make government accountable,
and curb the arbitrary use of power. The Act has now been amended to provide for
disclosure by government in all non-strategic areas.

National Rural Employment Guarantee Act

This Act came into force on February 2, 2006. The twin objectives of the Act are
augmenting wage employment and strengthening natural resource management. As per
the National Rural Employment Guarantee Act, job cards are issued to the rural
unskilled labour by guaranteeing work for 100 days in a financial year at a minimum
daily wage of Rs.100. It is the largest programme in the world for rural reconstruction.
The scheme covered 604 districts in India in three phases and provided employment
opportunities for more than 4.47 crore households in 2008-09. The total outlay for the
scheme is $8 billion during 2009-10.

NREGA creates transparency and accountability in governance. All NREGA

beneficiaries now have accounts with banks or post offices. The scope of the

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programme is limited to unskilled manual labour. The scope can be extended through
increased land productivity. Land productivity can be maximized through better
convergence of NREGA with other programmes. Sustainable development is the
ultimate goal of NREGA. M.S. Swaminathan, Father of Green Revolution in India
 [12]
argues that there is a synergy between National Food Security Act and NREGA.
NREGA through its diversified programmes on human development helps to ensure
food security for all. It is the realisation of Gandhi's dream to make India self-sufficient.
The scheme has now been renamed as Mahatma Gandhi Rural Employment
Guarantee Act. Gandhi ji thought us how unskilled manual labour can be made use of
for the betterment of society.

Food Security Act

Children and a nurse attendant at a Nigerian orphanage in the late 1960’s with
symptoms of low calorie and protein intake.

Food security is essential for the common man to lead a healthy and productive life.
That healthy life is impossible without government measures of food security.
Antyodaya Anna Yojana (AAY) is a centrally sponsored scheme launched on December
2000 for one crore of the poorest families. It is on the look out for the 'poorest of the
poor' by providing them 35 kilos of rice and wheat at Rs.2 per kg. Whereas the National
Food Security Act helps the poor to purchase 25 kg of rice or wheat per month at Rs.3
per kg. It calls for broader reforms in the public distribution system. Food Security Act
takes into consideration the following three important aspects:

 Food Availability.
 Food Access.
 Food Absorption.

Food availability in the market depends on domestic production and imports whereas
access to food hinges on the purchasing power of Aam Aadmi. Food absorption means

and thereby enables the human body to fight against

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the inclusion of required calorie-content micro and macro nutrients in our daily food in-
take deficiency
diseases.http://en.wikipedia.org/wiki/Aam_Aadmi - cite_note-13 .The absorption of food in the
body also depends on non-food factors such as safe drinking water, environmental
hygiene, primary healthcare and access to toilets.

Targeting the BPL families is one of the main issues in the implementation of the Act. In
2005 Planning Commission has made an evaluation of PDS schemes. They found that
more than 50 per cent of food did not reach the poor families. In the words of Dr.C
Rangarajan, "Food prices must be controlled; otherwise they have a tendency to lead to
manufacturing inflation. That will require monetary action especially on the supply
management side".

Bharat Nirman Yojana

Bharat Nirman Yojana is an action-oriented business plan for rural infrastructure. It is an

important step in bridging the gap between rural and urban areas and improving the
quality of lives of rural masses. It comprises of projects on irrigation, roads (Pradhan
Mantri Gram Sadak Yojana), housing (Indira Awaaz Yojana), water supply, and
electrification and telecommunication connectivity.

The Pradhan Mantri Gram Sadak Yojana (PMGSY) was launched on 25 December
2000. The primary objective of PMGSY is to provide good quality all-weather roads in all
the rural areas where urban-rural road connectivity is found to be very weak.
http://en.wikipedia.org/wiki/Aam_Aadmi - cite_note-16 All unconnected habitations with a
population of more than 500 persons have been provided connectivity by
2007.http://en.wikipedia.org/wiki/Aam_Aadmi - cite_note-17

Aam Aadmi is the image of common man. He is one among millions of illiterate
population of India. Whatever be the changes in the economy affects him the most.
Inflation, financial meltdown and the resultant job loss are cumbersome for Aam Aadmi.
http://en.wikipedia.org/wiki/Aam_Aadmi - cite_note-Patnaik2008-19 To put it otherwise, Aam

Aadmi is always caught up in a vicious circle of poverty.

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THE AAM AADMI KA SIPAHI

The Aam Aadmi Ka Sipahi (the Common Man's Army) is a programme launched by
Rahul Gandhi. It upholds the Right to Information Act and NREGA. The Aam Aadmi Ka
Sipahi aims to popularize the UPA government's flagship programmes by the Youth
Congress and train local youths in e-governance and use of computers. The Youth will
work at the punchayat level to facilitate the smooth functioning of NREGA and the Right
to Information Act. They create awareness among the rural poor of their rights. As
Rahul Gandhi commented, "If India has to progress, then the dalits, the slum dwellers
and the poor must progress for the country to move forward".

National Rural Employment Guarantee Act (NREGA)

What is NREGA?

 NREGA is designed as a safety net to reduce migration by rural poor households

in the lean period through A hundred days of guaranteed unskilled manual labour
provided when demanded at minimum wage on works focused on water
conservation, land development & drought proofing.

 Notification of the National Rural Employment Guarantee Act came in September

2005. It was launched on February 2, 2006.

 NREGA is the flagship programme of the UPA Government that directly touches
lives of the poor and promotes inclusive growth.

 The Act aims at enhancing livelihood security of households in rural areas of the
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country by providing at least one hundred days of guaranteed wage employment
in a financial year to every household whose adult members volunteer to do
unskilled manual work.
  The ongoing programmes of Sampoorn Grameen Rozgar Yojna & National Food
for Work Programme were subsumed within this programme in the 200 of the
most backward districts of the country, in which it was introduced in phase 1.

 In phase2 it was introduced in 130 additional districts. The scheme was extended
to 274 rural districts from April 1, 2008

 In phase3. NREGA is the first ever law internationally, that guarantees wage
employment at an unprecedented scale. Dr. Jean Drèze, a Belgian born
economist, at the Delhi School of Economics has been a major influence on this
project.

What are Objectives of NREGA?

Augmenting wage employment. Strengthening natural resource management through

works that address causes of chronic poverty like drought, deforestation and soil
erosion and so encourage sustainable development. Strengthening grassroots
processes of democracy Infusing transparency and accountability in governance.
Strengthening decentralization and deepening processes of democracy by giving a
pivotal role to the Panchayati Raj Institutions in planning, monitoring and
implementation.

OBJECTIVE OF THE ACT

The objective of the Act is to enhance livelihood security in rural areas by providing at
least 100 days of guaranteed wage employment in a financial year to every household
whose adult members volunteer to do unskilled manual work
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What are the Unique Features of NREGA?
Time bound employment guarantee and wage payment within 15 days. Incentive
disincentive structure to the State Governments for providing employment as 90
percent of the cost for employment provided is borne by the Centre or payment of
unemployment allowance at their own cost and emphasis on labor intensive
works prohibiting the use of contractors and machinery. The Act mandates 33 percent
participation for women.

SALIENT FEATURES OF THE ACT

i) Adult members of a rural household, willing to do unskilled manual work, may apply
for registration in writing or orally to the local Gram Panchayat

ii) The Gram Panchayat after due verification will issue a Job Card. The Job Card will
bear the photograph of all adult members of the household willing to work under
NREGA and is free of cost

iii) The Job Card should be issued within 15 days of application.

iv) A Job Card holder may submit a written application for employment to the Gram
Panchayat, stating the time and duration for which work is sought. The minimum
days of employment have to be at least fourteen.

v) The Gram Panchayat will issue a dated receipt of the written application for
employment, against which the guarantee of providing employment within 15 days
operates

vi) Employment will be given within 15 days of application for work, if it is not then
daily unemployment allowance as per the Act, has to be paid liability of payment of
unemployment allowance is of the States. 15
vii) Work should ordinarily be provided within 5 km radius of the village. In case work is
provided beyond 5 km, extra wages of 10% are payable to meet additional
transportation and living expenses.

viii) Wages are to be paid according to the Minimum Wages Act 1948 for agricultural
laborers in the State, unless the Centre noti.es a wage rate which will not be less
Than Rs. 60/ per day. Equal wages will be provided to both men and women.

ix) Wages are to be paid according to piece rate or daily rate. Disbursement of wages
has to be done on weekly basis and not beyond a fortnight in any case.

x) At least one-third benificiaries shall be women who have registered and requested
work under the scheme.

xi) Work site facilities such as crèche, drinking water, shade have to be provided.

xii) The shelf of projects for a village will be recommended by the gram sabha and
approved by the zilla panchayat.

xiii) At least 50% of works will be allotted to Gram Panchayats for execution.

xiv) Permissible works predominantly include water and soil conservation,

afforestation
and land development works.

xv) A 60:40 wage and material ratio has to be maintained. No contractors and
machinery is allowed

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xvi) The Central Government bears the 100 percent wage cost of unskilled manual labor
and 75 percent of the material cost including the wages of skilled and semi skilled
workers.
xvii) Social Audit has to be done by the Gram Sabha.

xviii) Grievance redressal mechanisms have to be put in place for ensuring a responsive
implementation process.

xix) All accounts and records relating to the Scheme should be available for public
scrutiny

How NREGA is implemented?

 The following image shows the key processes in the implementation of NREGA.
 Cost sharing: Central Government 3/4th, State Government 1/4th Adult members
of rural households submit their name, age and address with photo to the Gram
Panchayat.

 The Gram panchayat registers households after making enquiry and issues a job
card. The job card contains the details of adult member enrolled and his /her
photo.

 Registered person can submit an application for work in writing (for at least
fourteen days of continuous work) either to panchayat or to Programme Officer.

 The panchayat/programme officer will accept the valid application and issue
dated receipt of application, letter providing work will be sent to the applicant and
also displayed at panchayat office.
 17
The employment will be provided within a radius of 5 km: if it is above 5 km extra
wage will be paid.
  If employment under the scheme is not provided within fifteen days of receipt of
the application daily unemployment allowance will be paid to the applicant.

NREGA & Union Budget 2009-10:

During 2008-09, NREGA provided employment opportunities for more than 4.47 crore
households as against 3.39 crore households covered in 2007-08.

Govt. is committed to providing a real wage of Rs.100 a day as an entitlement under the
NREGA.

To increase the productivity of assets and resources under NREGA, convergence with
other schemes relating to agriculture, forests, water resources, land resources and rural
roads is being initiated. In the first stage, a total of 115 pilot districts have been selected
for such convergence.

Govt of India has proposed an allocation of Rs.39,100 crore for the year 2009-10 for
NREGA which marks an increase of 144% over 2008-09 Budget Estimates.

Government of India has proposed an allocation of Rs.40,100 crore for the year 2010-
11 for NREGA which was 39,100 crore in 2009-10 Budget Estimates.

How Monitoring & Evaluation is done in NREGA?

The Ministry has set up a comprehensive monitoring system. For effective monitoring of
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the projects 100% verification of the works at the Block level, 10% at the District level
and 2% at the State level inspections need to be ensured. In order to optimize the
multiplier effects of NREGA, the Ministry has set up a Task Force to look at the
possibility of convergence of programmes like National Horticulture Mission, Rashtriya
Krishi Vikas Yojana, Bharat Nirman, and Watershed Development with NREGA.

These convergence efforts will add value to NREGA, works and aid in creating durable
efforts and also enable planned and coordinated public investments in rural areas.

Critical Issues of NREGA, how they are addressed?

 Issues Related to Job Cards: To ensure that rural families likely to seek
unskilled manual labor are identified & verify against reasonably reliable local
data base so that
 No domiciled contractor’s workers are not used on NREGA works. What is done
for this problem? Job card verification is done on the spot against an existing
data base and reducing the time lag between application and issue of job cards
to eliminate the possibility of rent seeking, and creating greater transparency etc.
Besides ensuring that
 Job Cards are issued prior to employment demand and work allocation rather
than being issued on work sites which could subvert the aims of NREGA.

 Issues related to Applications: To ascertain choices and perceptions of

households regarding lean season employment to ensure exercise of the right to
employment within the time specified of fifteen days to ensure that works are
started where and when there is demand for labor, not demand for works the
process of issuing a dated acknowledgement for the application for employment
needs to be scrupulously observed. In its absence, the guarantee cannot be
exercised in its true spirit.

 Issues Related to Selection of Works: Selection of works by gram

19
Sabah in villages and display after approval of shelf of projects, to ensure public
 choice, transparency and accountability and prevent material intensive,
contractor based works and concocted works records.

 Issues related to Execution of Works: At least half the works should be

run by gram panchayats. Maintenance of muster roll by executing agency -
numbered
 Muster rolls which only show job card holders must be found at each work to
prevent contractor led works.

 Issues related to measurement of work done: Regular measurement

of work done according to a schedule of rural rate sensitive Supervision of Works
by qualified
 Technical personnel on time. Reading out muster rolls on work site during regular
measurement to prevent bogus records and payment of wages below prescribed
levels.

 Issues related to Payments: Payment of wages through banks and post

offices to close avenues for use of contractors, short payment and corruption.

 Audit: Provision of adequate quality of work site facilities for women and men
laborers Creation and maintenance of durable assets adequate audit and
evaluation mechanisms widespread institution of social audit and use of findings.

Some Points:

Rozgar Jagrookta Puruskar award has been introduced to recognize outstanding

Contributions by Civil society Organizations at State, District, Block and Gram
20
Panchayat levels to generate awareness about provisions and entitlements and
ensuring compliance with implementing processes.

The government has engaged professional institutions like IIMs, IITs and agricultural
universities to assess the implementation of NREGA across the country.

Criticism of NREGA:

Here are some points raised regarding the implementation and success of NREGA in
various newspapers and magazines: In last 3 years on average only 50% of the
households that registered under the scheme actually got employment.

There is a wide variation of performance across states. In terms of the percentage of

registered households provided work, Maharashtra has averaged an abysmal 13% over
the three years while Rajasthan at the other end of the spectrum has averaged 73%.

The rural poverty line, which is now in the region of Rs 400 per capita per day, means
that an average household that is below the poverty line (BPL) will have an income of
something in the range of Rs 24,000 per annum or less, assuming a five member
household. In other words, if a BPL family were to get the full promised benefit of
NREGA they could earn the equivalent of more than 40% of their annual income from
this one scheme alone. That should be enough to see why NREGA should not be seen
as just another of the plethora of poverty alleviation schemes that India has had since
Independence.

If this scheme is implemented the right way, there will be no need for MP and MLAs
funds. Look at the figures: At Rs 2 crore per 543 MP, the allocation comes to Rs 1086
crore (most times this remains underutilized). In his budget, Finance Minister Pranab
21
Mukherjee has increased the NREGA allocation by 144% and it's now Rs 39,100 crore.
The Planning Commission has sought the Reserve Bank of India’s intervention in
streamlining the mechanism of paying wages under the NREGA. In a letter to the
central bank, the Commission said that the RBI should give directions to banks to
ensure that payments to the beneficiaries of the NREGA are made only through banks
or post offices. The Commission has pointed out that disbursing funds under the
NREGA, which has an annual allocation of Rs30,000 crore, needs to be strengthened to
ensure that no leakages happen as the canvas of the programme is bound to expand in
the near future.

Despite the political and economic importance NREGA has generated, there is lack of
studies on the working of public employment programmes.

STAKEHOLDERS
This chapter describes the key stakeholders and their roles and responsibilities for
effective implementation of NREGAS.
Key Stakeholders are:
i) Wage seekers
ii) Gram Sabha
iii) PRIs, specially the gram panchayat
iv) Programme Officer at the block level
v) District Programme Coordinator
vi) State Government
vii) Ministry of Rural Development

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VILLAGE LEVEL
Wage Seekers:
The wage seekers are the primary stake holders of the Act. Their exercise of choice to
demand employment is the trigger of key processes. The rights of the wage seekers
are:
i) Application for registration
ii) Obtaining a Job Card
iii) Application for work
iv) Choice of time and duration of the work applied for
v) Provision of work within fifteen days of application
vi) Provision of crèche, drinking water, .rst aid facilities on work site
vii) The right to check their Muster Rolls and to get information regarding their
employment entered in their Job Cards
viii) Payment of wages within fifteen days of work done
ix) The right to get unemployment allowance in case employment is not provided within
.fiteen days of submitting the application or from the date when work is sought
Gram Sabha (GS): The Gram Sabha has been given the following rights and
responsibilities under the Act
i) It will recommend works to be taken up under NREGAS
ii) It will conduct social audits on implementation of the Scheme
iii) In addition, it is suggested that the Gram Sabha be used extensively as a forum for
sharing information about the Scheme.
Gram Panchayat (GP): The Gram Panchayat is the pivotal body for implementation at
the village level. Where Part Nine of the Constitution does not apply, local councils/
authorities as mandated by the State concerned will be invested with corresponding
responsibilities. The Gram Panchayat is responsible for the following activities:
i) Planning of works
ii) Receiving applications for registration
iii) Verifying registration applications 23
iv) Registering households
v) Issuing Job Cards
vi) Receiving applications for employment
vii) Issuing dated receipts,
viii) Allotting employment within .fifteen days of application
ix) Executing works
x) Maintaining records
xi) Convening the Gram Sabha for social audit
x) Monitoring the implementation of the Scheme at the village level.

BLOCK LEVEL
Intermediate Panchayat (IP): The Intermediate Panchayat will be responsible for the
consolidation of the GP plans at the Block level into a Block Plan and for monitoring
and supervision Programme Officer (PO): The Programme Officer essentially acts as a
coordinator for NREGAS at the Block level. The chief responsibility of the Programme
Officer is to ensure that anyone who applies for work gets employment within 15 days.
A Programme Officer’s other important functions are:
Scrutinizing the annual development plan proposed by the GPs

ii) Including the proposals of the Intermediate Panchayat

iii) Consolidating all proposals into the block plan and submitting it to the Intermediate
Panchayat

iv) Matching employment opportunities with the demand for work at the Block level;

v) Monitoring and supervising implementation

vi) Disposal of complaints

24
vii) Ensuring that social audits are conducted by the Gram Sabhas and following up on
them
viii) Payment of unemployment allowance in case employment is not provided on time
The Programme Officer is accountable to the District Programme Coordinator.

DISTRICT LEVEL
District Panchayats will be responsible for finalizing the District Plans and the Labour
Budget and for monitoring and supervising the Employment Guarantee Scheme in the
District.
District Programme Coordinator (DPC): The State Government will designate a District
Programme Coordinator, who can be either the Chief Executive Officer of the District
Panchayat, or the District Collector, or any other District-level officer of appropriate rank.
The overall responsibility for ensuring that the Scheme is implemented according to the
Act belongs to the District Programme Coordinator (DPC) at the District level. A District
Programme Coordinator will be responsible for:

I. Information dissemination
II. Training
III. Consolidating block plans into a district plan
IV. Ensuring administrative and technical approvals to the shelf of projects has been
V. accorded on time
VI. Release and utilization of funds
VII. Ensuring hundred percent monitoring of works, Muster Roll Verifications,
VIII. Submission of Monthly Progress Reports.

STATE LEVEL

i) State Employment Guarantee Council (SEGC): A State Employment Guarantee

25
Council (or ‘State Council’) is to be set up by every State Government under Section 12
of NREGA. The SEGC shall advise the State Government on the implementation of the
Scheme, and evaluate and monitor it. Other roles of the State Council include deciding
on the ‘preferred works’ to be implemented under NREGAS, and recommending the
proposals of works to be submitted to the Central Government under Schedule I Section
1 (ix) of the Act.
The State Council will prepare an Annual Report on the implementation of the NREGAS
in the State to be presented to the State Legislature.
ii) The State Government will be responsible for:
a) Wide communication of the Scheme
b) Setting up the SEGC
c) Establishing a State Employment Guarantee Fund
d) Ensuring that full time dedicated personnel are in place for implementing NREGA,
specially the Gram Panchayat assistant (Gram Rozgar Sahayak) and the Programme
Officer and the technical staff
e) Ensuring that the State share of the NREGAS budget is released on time
f) Delegation of financial and administrative powers to the District Programme
Coordinator and the Programme Officer, as is deemed necessary for the effective
implementation of the Scheme
g) Training
h) Establishing a network of professional agencies for technical support and for quality-
control measures
i) Regular review, monitoring and evaluation of NREGAS processes and outcomes.
j) Ensuring accountability and transparency in the Scheme at all levels

CENTRAL LEVEL

i) Central Employment Guarantee Council (CEGC): A Central Employment Guarantee

Council (or ‘Central Council’) has been set up under the chairmanship of the Minister of
Rural development. The Central Council is responsible for advising the Central
Government on NREGA-related matters, and for monitoring and evaluating the 26
implementation of the Act. It will prepare Annual Reports on the implementation of
NREGA for submission to Parliament.
ii) Ministry of Rural Development (MORD): The Ministry of Rural Development is the
nodal Ministry for the implementation of NREGA. It is responsible for ensuring timely
and adequate resource support to the States and to the Central Council. It has to
undertake regular review, monitoring and evaluation of processes and outcomes.
It is responsible for maintaining and operating the MIS to capture and track data on
critical aspects of implementation, and assess the utilization of resources through a set
of performance indicators. MORD will support innovations that help in improving
processes towards the achievement of the objectives of the Act. It will support the use
of Information Technology (IT) to increase the efficiency and transparency of the
processes as well as improve interface with the public. It will also ensure that the
implementation of NREGA at all levels is sought to be made transparent and
accountable to the public.

27
REGISTRATION AND EMPLOYMENT ELIGIBILITY
NREGA HOUSEHOLD
The National Rural Employment Guarantee Scheme (NREGAS) will be open to all rural
households in the areas notified by the Central Government. The entitlement of 100
days of guaranteed employment in a financial year is in terms of a household. This
entitlement of 100 days per year can be shared within the household; more than one
person in a household can be employed (simultaneously or at different times).

All adult members of the household who register may apply for work. To register, they
have to:
a) Be local residents: ‘Local’ implies residing within the Gram Panchayat. This includes
those that may have migrated some time ago but may return
b) Be willing to do unskilled manual work
c) Apply as a household at the local Gram Panchayat

‘Household’ will mean a nuclear family comprising mother, father, and their children,
and may include any person wholly or substantially dependent on the head of the
family. Household will also mean a single-member family.

APPLICATION FOR REGISTRATION

1. The application for registration may be given on plain paper to the local Gram
Panchayat. It should contain the names of those adult members of the household
who are willing to do unskilled manual work, and particulars such as age, sex
and SC/ST status.

2. An individual may appear personally and make an oral request for registration.

3. Verification of applications will be regarding local residence in the Gram28

Panchayat concerned, the household as an entity, and the fact that applicants
are adult members of the household.
4. Notwithstanding the method of application, registration and verification suggested
above, a Gram Sabha shall be convened when the Act commences in a district.
The
5. Purpose of the Gram Sabha will be to explain the provisions of the Act, mobilize
applications for registration and conduct verifications.

6. A door-to-door survey may also be undertaken to identify persons willing to

register under the Act. The survey may be conducted by a team headed by the
President of the Gram Panchayat and involving Ward members, SC/ST and
women residents, a village-level Government functionary and the Gram
Panchayat Secretary. The team members may be given orientation at the
Block/District level.

7. To allow maximum opportunities to families that may migrate, registration will be

open throughout the year at the Gram Panchayat officer during working hours.

8. The process of verification shall be completed as early as possible, and in any

case, not
9. Later than a fortnight after the receipt of the application in the Gram Panchayat.

10. After verification, the Gram Panchayat will enter all particulars in the
Registrations.

11. Register in the Gram Panchayat.

12. Every registered household will be assigned a unique registration number. The
registration number shall be assigned in accordance with a coding system similar
to that prescribed by the Central and State Governments for the BPL Census
2002.
29
 13. Copies of the registration will be sent to the Programme Officer for the purpose of
reporting to the Intermediate Panchayat and District Panchayat for further
planning,
14. Tracking and recording. This must be done immediately, so that the Programme
Officer has a consolidated record of likely demand to enable him/ her to organize
resources accordingly. A Gram Sabha of registered workers must be held.

15. If a person who applies for registration turns out to have submitted incorrect
information regarding his/her name, residence or adult status, he/she will
become ineligible. In such cases, the Gram Panchayat will refer the matter to the
Programme Officer. The Programme Officer, after independent verification of
facts and giving the concerned person an opportunity to be heard, may direct the
Gram Panchayat to cancel such registration and Job Card. Such cancellation
lists will have to be made public and should be presented to the Gram Sabha.

JOB CARDS

The Gram Panchayat will issue Job Cards to every registered household. The timely
issue of well-designed Job Cards is essential; this is a critical legal document, which
also helps to ensure transparency and protect laborers against fraud.

The Job Card should be issued immediately after verification, i.e. within a fortnight of
the application for registration. Job cards should be issued in the presence of the local
community.

Photographs of adult members who are applicants have to be attached to the job cards.
The cost of the Job Cards, including that of the photographs, will be borne as part of the
programme cost. The State Government in a particular area may order the photograph
30
to be affixed later (but not later than a month) if the immediate provision of a photograph
is not possible. No photograph, name or details of any person other than that of the
registered adult members of the household to whom that job card belongs shall be
affixed or recorded in the Job Cards.

The Job Card will be in the custody of the household to whom it is issued.

The Job Card shall be valid for a period of five years and will have provision for the
addition/deletion of members eligible to work. Deletions in any household on account of
demise, or permanent change of residence of a member, are to be reported
immediately by the household concerned. Additions desired may be applied for by the
household. The Gram Panchayat will also undertake an annual updating exercise in the
same manner as registration, the time for which should be fixed keeping in mind the
work and migration season of the local workforce.

All additions and deletions made in the Registrations Register will be read out in the
Gram Sabha. The Gram Panchayat will send a list of additions/deletions to the
Programme Officer.

Job Cards of all States must be in conformity with this. The proforma of the Job Card
should be such that it contains permanent information regarding the household as well
as the employment details for five years. Permanent information will include the
household registration number and particulars (such as age and sex) of all adult
members of the family who are willing to work.

A cardholder may apply for a duplicate Job Card if the original card is lost or damaged.
The application will be given to the Gram Panchayat and shall be processed in the
manner of a new application, with the difference being that the particulars may also be
verified using the duplicate copy of the Job Card maintained by the Panchayat.

31
If a person has a grievance against the non-issuance of a Job Card, he/she may bring
the matter to the notice of the Programme Officer. If the grievance is against the
Programme Officer, he/she may bring it to the notice of the District Programme
Coordinator or the designated grievance-redressal authority at the Block or District
level. All such complaints shall be disposed off within 15 days.

APPLICATION FOR WORK

Applications for work should generally be submitted to the Gram Panchayat. In addition,
as prescribed by the Act (Schedule II, Section 9), workers should have the option of
submitting an application directly to the Programme Officer, but this should be treated
as a ‘fallback’ option only.

Applications should be given in writing and should include:

 The registration number of the Job Card;

 The date from which employment is required; and
 The number of days of employment required.

The Application for employment may be on plain paper or it may be in a printed

proforma that will be made available free of cost at the Gram Panchayat.

A single application may be given for a number of days in different periods during the
year for which employment is required. ‘Joint applications’ may also be submitted by
several applicants. The applicant may present himself in the GP office to indicate
willingness for work. This will be recorded by Gram Rozgar Sahayak in the prescribed
application form and employment register. A worker having a job card may apply for
work on work-site. His name may be entered in the Muster Roll by the Mate. Gram
Rozgar Sahewk may make corresponding entries in the application form. This will
encourage workers to get work without having to formally articulate their demand for
work. The lack of formal application form should not be a ground for denying work. This
is also the spirit of the law. 32
A dated receipt for the application for work must be issued to the applicant.
The Application form for employment should have a counterfoil receipt on which the
date can be entered and the dated receipt can then be issued immediately upon the
submission of the application for employment. A format for application for employment
with a dated receipt is at annexure 1A. All applications for employment must be entered
in the Employment register as prescribed in these guidelines

Information on new applications for work shall be conveyed at least once a week by the
Gram Panchayat to the Programme Officer.

REGISTRATION AND EMPLOYMENT ELIGIBILITY

ALLOCATION OF EMPLOYMENT OPPORTUNITIES
Schedule I, Section 10 of NREGA states that it shall be open to the Programme Officer
and the Gram Panchayat to direct any person who has applied for employment to do
work of any type permissible under the Act. The State Government shall delineate clear
coordination mechanisms so that data on work requested and allotted by the
Programme Officer and the Gram Panchayat are properly maintained. This information
should be recorded on the Job Card and the Employment Register. Both the agencies
should share information on employment allotted and works opened.

If some applicants have to be directed to report for work beyond 5 km of their residence,
women (especially single women) and older persons should be given preference to
work on the worksites nearer to their residence.

The work entitlement of ‘100 days per household per year’ may be shared between
different adult members of the same household. If several members of a household who
share the same Job Card are employed simultaneously under the Scheme, they should
be allowed to work on the same worksite. If unusual circumstances arise whereby 33
members of the same household have to be allocated work on different worksites, the
Gram Panchayat should ensure that the Job Card is duly processed at both worksites.
If a request for work is made to the Gram Panchayat, it should offer employment on the
works executed (or to be executed) by it. If, under any circumstances, this is not
possible, the Gram Panchayat must inform the Programme Officer. The Programme
Officer will issue directives for the execution of work to an implementing agency
competent to execute it and also ensure that the funds needed for that work are
released.

If the Gram Panchayat decides that employment cannot be given under its own shelf of
works, and that employment needs to be given outside the Gram Panchayat, it will
inform the Programme Officer.

Upon receiving this intimation from the Gram Panchayat, the Programme Officer will
allot work. Such work will be selected from the shelf of projects that include inter Gram
Panchayat works. The Programme Officer will intimate the Gram Panchayat concerned
about the employment allotted so that the employment data is consolidated in the
Employment Register at the Gram Panchayat.
If a request for employment is made to the Programme Officer and the Programme
Officer allots work; he must inform the Gram Panchayat so that the data on works and
employment are coordinated at each level. The Gram Panchayat will also inform the
Programme Officer of the employment allotments made. This information sharing
should be done on a prescribed proforma on a weekly basis.

Applicants who are provided work shall be intimated by the Gram Panchayat/
Programme Officer by means of a letter sent to them at the address given in the Job
Card, and also by a public notice displayed at the offices of the Gram Panchayat and
the Programme Officer.

34
While providing employment, priority shall be given to women in such a way that at least
one-third of the beneficiaries shall be women who have registered and requested for
work under the Scheme (NREGA, Schedule II, Section 6).
If a rural disabled person applies for work, work suitable to his/her ability and
qualifications will have to be given. This may also be in the form of services that are
identified as integral to the programme. Provisions of the Persons with Disabilities
(Equal Opportunities, Protection of Rights and Full Participation) Act, 1995 will be kept
in view and implemented.

Schedule II, Section 6 vests the Programme Officer with the responsibility of ensuring
that every applicant is provided unskilled manual work. Thus, the overall responsibility
of coordination and resource support to the Gram Panchayat and other Implementing
Agencies will vest with the Programme Officer. To ensure that every applicant has work
according to the legal entitlement, the Programme Officer shall have the power to
supervise and direct the Gram Panchayats and the other Implementing Agencies to
discharge their responsibilities. If any Implementing Agency fails to do so, the
Programme Officer will ensure that the applicants for work are not aggrieved and make
arrangements for their employment, while also reporting the matter to the District
Programme Coordinator for appropriate action.

TIME-BOUND EMPLOYMENT

The Gram Panchayat/Programme Officer shall be responsible for providing wage

employment to the applicant within 15 days of the date of receipt of the application in
the case of advance applications, employment will be provided from the date that
employment has been sought, or within 15 days of the date of application, whichever is
later.

35
If a Gram Panchayat is unable to provide employment within 15 days, it will be the
responsibility of the Programme Officer to do so. The employment allotted by the
Programme Officer will be intimated to the Gram Panchayat and vice versa.

If upon receiving a request for work, an Implementing Agency directed by the

Programme Officer does not start work on time, or does not employ the persons
directed to it for work by the Gram Panchayat, the Programme Officer will make
alternative arrangements to ensure employment for those applicants.

REGISTRATION AND EMPLOYMENT ELIGIBILITY

According to Section 14(d) of the Act, the District Programme Coordinator will
coordinate with the Programme Officers and the Implementing Agencies to ensure that
applicants are provided employment as per their entitlements. If a Programme Officer
fails to provide employment, the District Programme Coordinator will intervene to make
appropriate arrangements for employment.

MAINTENANCE OF FUNDS BY THE GRAM PANCHAYATS

Each Gram Panchayat will have a single bank account for the purpose of implementing
NREGAS works. This NREGAS account will be operated jointly by the President and
the Secretary of the Gram Panchayat.

All payments made from the NREGAS account will be reported to the Gram Panchayat
at its next meeting and approval will be obtained. Any objection will be recorded and a
copy of the minutes will be sent immediately to the Programme Officer for necessary
action.
36
Funds from the NREGAS account may be spent on NREGAS works after only these
works have received the required Administrative and Technical Sanction from the
competent authorities. The President of the Gram Panchayat will be personally liable for
any expenditure made without such sanctions.

The NREGAS-related accounts of the Gram Panchayat shall be presented for scrutiny
at the biannual social audits of the Gram Sabha, in pre-specified formats.

NREGAS funds at the Gram Panchayat level cannot be used for other purposes under
any circumstances. The Gram Panchayat President and Secretary shall be responsible
for ensuring that disbursements from the NREGAS account are made for legitimate
purposes. Any diversion of NREGAS funds will be treated as a defalcation and recovery
proceedings will be immediately initiated.

The Gram Panchayats will be authorized to spend the money released to them on the
works that have been sanctioned for them to execute. After 60 percent of the allocation
given to any Gram Panchayat has been spent, the Gram Panchayat may apply to the
Programme Officer/DPC for release of additional funds. The proposal of the Gram
Panchayat shall be accompanied by a statement of work-wise expenditure together with
the report of the Vigilance and Monitoring Committee duly approved by the Gram
Sabha.

MONTHLY SQUARING OF ACCOUNTS

To reduce the risk of financial ‘leakages’, and to promote transparency and accuracy in
fund management, the practice of ‘monthly squaring of accounts’ should be introduced.
This consists of verifying that all the money released under NREGA is accounted for
under the following three heads:
i) Money held in bank accounts at various levels;
37
ii) Advances to implementing or payment agencies;
iii) Vouchers of actual expenses.
Details of the monthly squaring of accounts should be made publicly available on the
Internet at all levels of aggregation.

RECORDS TO BE MAINTAINED
PANCHAYATS AND OTHER IMPLEMENTING AGENCIES

Proper maintenance of records is one of the critical success factors in the

implementation of NREGA. Information on critical inputs, processes, outputs and
outcomes have to be meticulously recorded in prescribed registers at the levels of
District Programme Coordinator, Programme Officer, Gram Panchayat and other
Implementing Agencies. The computer based Management Information System will
also capture the same information electronically. In order to facilitate systematic
collection of information at various levels, following records are to be maintained
under NREGA :
i) Muster Roll Issue Register - This register should be maintained date-wise by the
Programme Officer who is the Muster Roll issuing authority. This Register helps to
correlate the Muster Rolls issued with the work and the agency for which it is issued.
This Register will be maintained by the Programme Officer at the Block level.
ii) Muster Roll Receipt Register for Gram Panchayats - This Register is to be
maintained by the Gram Panchayat which receives the Muster Roll from the Programme
Officers.
This Register also contains the details of receipts of the used Muster Rolls given to the
Gram Panchayats by other implementing agencies. This Register will be maintained
by Gram Panchayat.
iii) Muster Roll Receipt Register for Other Implementing Agencies - This Register
provides date-wise information on receipt of Muster Roll and the works for which it is
issued. It also contains information on the date on which the used Muster Roll is given
to the Gram Panchayat for record. This Register will be maintained by implementing 38
agencies other than Gram Panchayat.
iv) Job Card Application Register - In this Register the name of the applicant, date of
receipt of application and the details of job cards issued are provided. It also contains
reasons in case the job card is not issued. This Register will be maintained by Gram
Panchayat/Programme Officer.
v) Job Card Register - In this Register the details of the members of the households
who have been issued job cards are given. This Register will be maintained by Gram
Panchayat/Programme Officer.
vi) Employment Register - This contains the information on details of application for
work, allotment of work, performance of work and the wages or unemployment
allowance paid to the worker. This Register will be maintained by Gram Panchayat/
Programme Officer.
vii) Works Register - This Register contains details of the work such as number. and
date of sanction order, completion date, expenditure incurred, date of social audit, pre-
mid-post-project condition of the work, etc. This Register will be maintained by
Programme Officer/Gram Panchayat/other Implementing Agencies.
viii) Assets Register - This Register contains details of the asset, its cost, location,
current status, bene.ts derivable and the details of works which have been taken on the
asset. This Register will be maintained by Programme Officer/Gram Panchayat/other
Implementing Agencies. A distinction needs to be maintained between works and
assets. Works are taken up on pre-existing assets or, they lead to creation of new
assets. Whenever works are taken up, entries should be made not only in the works
register but also in the assets register.
ix) Complaints Register - This Register contains the date of receipt of the complaint,
the details of the complainant, the action taken on the complaint and the date of final
disposal. This Register will be maintained by Programme Officer/DPC/ Gram
Panchayats/ other Implementing Agencies.
x) Monthly Allotment and Utilization Certificate Watch Register - This Register
contains date-wise information on allotment, expenditure, balance available with
the implementing agency and the details regarding submission and pendency of

39
Uitlization Certificate. This Register should be maintained by all agencies that receive
funds for expenditure under NREGA. This Register will be maintained by DPC/
Programme Officer/ Gram Panchayat/Other Implementing Agencies.
SUMMARY OF RECORDS TO BE MAINTAINED
Name of Register Level at which Register is to be
1 B-4 Muster Roll Issue Register Programme Officers at the Block level
2 B-5 Muster Roll Receipt Register Gram Panchayat
3 B-6 Muster Roll Receipt Register Implementing Agency other than Gram Panchayat
4 B-7 Job Card Application Register Gram Panchayat/ Programme Officer
5 B-8 Job Card Register Gram Panchayat/ Programme Officer
6 B-9 Employment Register Gram Panchayat/ Programme Officer
7 B-10(i) Works Register Programme Officer/Gram Panchayat/ other Implementing
Agencies
8 B-10(ii) Assets Register Programme Officer/Gram Panchayat/ other Implementing
Agencies
9 B-11 Complaint Register Programme Officer/DPC/ Gram Panchayats/ other
Implementing Agencies
10 B-16(A) Monthly Allotment and Utilization Certificate Watch Register DPC/
Programme Officer/ Gram Panchayat/Other Implementing Agencies.

RECORD OF EMPLOYMENT

Every agency making payment of wages must record on the job card without fail the
amount paid and the number of days for which payment has been made.

The responsibility for coordination of employment data will lie with the Gram Panchayat
at the Gram Panchayat level, and with the Programme Officer at the Block level. The

40
Gram Panchayat will consolidate household-wise employment data in the Employment
Register. The Gram Panchayats will report the employment data in prescribed formats
to the Programme Officer on a fortnightly basis who will coordinate the employment
data at the Block level and send to the District Programme Coordinator. Any problems
in this regard will be addressed immediately by the District Programme Coordinator.

FORTNIGHTLY REPORT ON WORKSITES

The Programme Officer should attempt to arrange to collect data on labour employed
and material received on a fortnightly basis from each NREGAS worksite. This
information should be collated in a prescribed format and displayed on the notice board
at the office of the Programme Officer. It should also be posted in summary form on the
NREGAS website on a regular basis.

While finalizing the accounts of each work and authorizing its final closure, the
Programme Officer will check and satisfy himself/herself that the final expenditures
reported by the Implementing Agency are found to be correct.

MUSTER ROLLS
Muster rolls each with a unique identity number will be issued by the Programme
Officer to the Gram Panchayats and all Executing Agencies.

Muster rolls will be maintained by the Gram Panchayats and other Executing Agencies.

They will contain, inter alia, the following information for each work:
i) Name of the person on work; his or her job card number; days worked and days
absent; and wages paid. The payment made and the number of days worked will be
entered in the household job card of every worker.
ii) Unique identity number given to that work.
iii) Signature or thumb impression of the payee.
41
The original muster roll will form part of the expenditure record of the Executing Agency.
A photocopy of the muster roll will be kept/sent for data coordination and for public
inspection in every Gram Panchayat and in the office of the Programme Officer.

Muster Rolls should be computerized at the Programme Officer level, and if possible at
the Gram Panchayat level.

Any Muster Roll that is not issued from the office of the Programme Officer shall be
considered unauthorized.

Commitment to transparency and accountability runs throughout the National Rural

Employment Guarantee Act (NREGA). This commitment also flows from the Right to
Information Act, 2005.

MONITORING, EVALUATION & REVIEW

MONITORING AT VARIOUS LEVELS

The Gram Sabha will monitor all the works at the village level as well as the
employment provided to each person who has applied for work. It will also monitor the
registration and issue of job cards and the timely payment of wages.
VIGILANCE AND MONITORING COMMITTEES
For every work sanctioned under the Scheme, there should be a local Vigilance and
Monitoring Committee,(VMC) composed of members of the locality or village where the
work is undertaken, to monitor the progress and quality of work while it is in progress.
The VMC will comprise nine members. The Gram Sabha will elect the members of this
Committee and ensure that SC/STs and women are represented on it. It should have at
least 50% of members from among NREGA workers. The VMC should be elected for
the period of one year by the Gram Sabha. The GP/ Implementing Agency should 42
apprise this Committee of estimates regarding the work, time frame and quality
parameters. The Final Report of the Committee should be attached along with the
Completion Certificate of the work, and should also be placed at the next meeting of
the Gram Sabha in the Panchayat where work has been executed. A copy of the Report
will also be sent to the Programme Officer and the District Programme Coordinator. The
Programme Officer will be responsible for ensuring that local Vigilance and Monitoring
Committees are constituted. VMC should be village specific and not work specific. It
should facilitate the social audit by the Gram Sabha.

Local Beneficiary Committees may also be constituted for effective articulation of their
entitlements and their access to information.
The Gram Panchayat will monitor works executed by other Implementing Agencies,
muster rolls maintained by them at worksites, and the payments made.

The Intermediate Panchayat and the Programme Officer will monitor the registration of
households, issue of Job Cards, employment demanded and provided, maintenance of
muster rolls, unemployment allowances paid, social audits, .ow of funds, timely and
correct payment of wages, and progress and quality of works. The Programme Officer
shall be responsible for sending all reports and returns to the District Programme
Coordinator, who in turn shall send reports to the State and Central Governments.

The District Panchayat and the District Programme Coordinator will monitor all aspects
of implementation, especially timely issue of Job Cards, provision of employment, social
audits, flow of funds, progress and quality of works,

The State Government will monitor the Scheme in all its aspects of implementation,
specially, timely and correct payment of wages, timely payment of unemployment
allowances and grievance redressal. The State Government will send consolidated
reports and returns to the Central Government.

43
Central Government will establish a monitoring system through internal and external
monitoring agencies. A central monitoring and evaluation system will be evolved by the
Central Employment Guarantee Council.

THE FOLLOWING ASPECTS OF THE PROGRAMME WILL BE

MONITORED AT ALL LEVELS:

i) Effectiveness and outreach of IEC activities specially among the Job Card holders
ii) Application for Registration and verification process for registration
iii) Time taken to issue Job Cards
iii) Application for Demand
iv) Issue of dated receipts
v) Allocation of employment within fifteen days
vi) Maintenance of authentic updated Muster Rolls on work sites
vii) Quality of work executed
viii) Measurement of work done and maintenance of measurement books
ix) Timely and correct payment
x) Entries in the Job Cards
xi) Maintenance of records prescribed under the Guidelines
x) Grievance redressal
xi) Fund utilization
xii) Organization of social audit
MONITORING METHODS
The following targets are fixed for internal verification of works at the .eld level by the
official functionaries to be achieved within a quarter. 100% of works at the Block level
10% of works at the District level 2% at the State level.

44
Verification and quality audit by external monitors must be taken up at the Central,State
and District levels. For this purpose, National Quality Monitors (NQM) at the national
level may be designated by the Ministry of Rural Development with the approval of the
Central Council. Similarly, State Quality Monitors (SQM) at the State level may be
designated by the State Government with the approval of the State Council. The District
will also identify District Quality Monitors (DQM) with the approval of the State
Government. The Central Government may draw up broad indicative terms of reference
for use by States for the quality monitors

All programme implementation authorities—from the Programme Officer to the District

and State levels—shall report regularly on the online MIS developed by the Central
Ministry for NREGA: www.nrega,nic,in.

Field visits, inspections and sample checks (internally and externally) must be
undertaken on a regular basis to ensure comprehensive and continuous assessment of
the Scheme.

EVALUATION
The objective of NREGA is the ‘creation of durable assets and strengthening the
livelihood resource base of the rural poor’ (Schedule I, Section 2). Investments made
under NREGA are expected to generate employment and purchasing power, raise
economic productivity, promote women’s participation in the workforce, strengthen the
rural infrastructure through the creation of durable assets, reduce distress migration,
and contribute to the regeneration of natural resources. Thus, outlays for NREGAS
have to be transformed into outcomes. Regular evaluations and sample surveys of
specific NREGAS works should be conducted to assess outcomes.

District-wise studies should be conducted or commissioned by the State Employment

Guarantee Council. Block-wise evaluation studies should be conducted or
commissioned by the District Programme Coordinator.

45
SEGC should seek the association of research institutions of repute with this process.
All evaluation agencies should be approved by SEGC.
Broad guidelines for evaluation studies, including NREGAS assessment criteria, should
be framed by SEGC.

SEGC should develop its own evaluation system in collaboration with research
institutions of repute and review evaluations conducted by other agencies. The
evaluation studies should also throw light on particular innovations in planning,
monitoring or implementation. These should be sent to the State and Central
Governments for examination and dissemination to other parts of the State and country.

Evaluation through agencies on parameters approved by the Central Employment

Guarantee Council should be undertaken.

The findings of the evaluation studies should be used by SEGC, the District Panchayats
and other institutions for initiating corrective action. The entitlements under the Act are
legally justiciable. For this reason, among others, it is important to maintain accurate
records of all aspects of implementation. This is also required by the Right to
Information Act, 2005. This chapter indicates which records and data must be
maintained. The maintenance and timely updating of information will require
operationalisation of the comprehensive computerized Monitoring and Information
System (MIS) developed by the Ministry.

RIGHT TO INFORMATION AND PROACTIVE DISCLOSURE

THE RIGHT TO INFORMATION ACT

The Right to Information Act should be followed both in letter and in spirit in all matters
relating to NREGA. Section 4 of the Act, which concerns proactive disclosure of
information, should be strictly complied with at all levels.

Requests for copies of NREGAS-related documents submitted under NREGA should be 46

complied with within seven days. No request should be refused under any
circumstances. In particular, no information should be withheld by invoking Clause 8 of
the Right to Information Act. All NREGA-related information is in the public domain.

Key documents related to NREGA should be proactively disclosed to the public without
waiting for anyone to ‘apply’ for them. A list of such key documents should be prepared
by the State Employment Guarantee Council, and updated from time to time.

Public access to key records and key information should be ensured at all levels.
Updated data on demand received, registration, number of job cards issued, list of
people who have demanded and been given/not given employment, funds received and
spent, payments made, works sanctioned and works started, cost of works and details
of expenditure on it, duration of work, person-days generated, reports of local
committees, and copies of muster rolls should be made public in a pre-designated
format outside all offices of all agencies involved in implementing NREGAS, and should
also be placed by the Gram Panchayat before the Gram Sabha once in every quarter.

People should know who to apply to for information and for gaining access to records.
There should be broad time limits for giving such information. The names and contact
addresses of such key persons should be made known to the public. Fees charged for
copies of NREGA-related documents should not exceed photocopying costs.

Whenever feasible, key documents should be made available on the Internet.

NREGAS-related accounts of each Gram Panchayat should be proactively displayed

and updated twice a year. Summary accounts should be displayed through various
means, including painting on walls at the Panchayat Bhawan, postings on notice boards
and publication in Annual Reports available at cost price.

Report Cards on local works, employment and funds should be posted by the Gram
Panchayat on its premises, and by the Programme Officer at the Intermediate
47
Panchayat/Programme Officer’s office, and for the whole District by the District
Programme Coordinator at the District Programme Coordinator/District Panchayat
office.

ANNUAL REPORTS

The Central Employment Guarantee Council is required to prepare an Annual Report on

the implementation of the Act. This Report is to be laid before Parliament by the Central
Government.

Every State Employment Guarantee Council is required to prepare an Annual Report

for the State Legislature.

The Annual Reports should be placed before Parliament and the State Legislatures by
31 December of the succeeding year.

FINANCIAL AUDIT
Financial Audit is mandatory. This must be carried out at the end of the financial year by
each District. The audit will be done either by Local Fund Auditors or by the Chartered
Accountants appointed by the State Government. A copy of the Audit Note will be sent
to the State Government. A concurrent audit will be undertaken in addition to this.

The Accountant General will also conduct the Audit of Accounts of NREGA in addition
to the audit conducted by the Chartered Accountants. The audit team of the Accountant
General shall be supplied with a copy of the audit conducted by the Chartered
Accountants.

48
The Audit Report of the Chartered Accountant and the Utilization Certificate for the
previous year must be submitted latest by September next year by the District
Programme Coordinator. If the Audit Report is not received, or if the observations of the
Auditor and of the Ministry on the Audit Report are not properly attended to or complied
with, to the satisfaction of the Ministry within the financial year, the Ministry will be within
its right to stop the funds for the next finanacial year. The responsibility for payment of
unemployment allowance arising out of the non-availability of funds for this reason shall
be on the State Government.

The District Programme Coordinator will ensure that the Opening and Closing Balance
included in both the Audit Report and the Utilization Certificate tally. In case there is
variation due to any unavoidable reason, it has to be clearly explained with reasons to
the satisfaction of the Ministry, with documentary support, if any. If this is not done, the
Ministry may stop further release of funds in the next year.

Processing of reports of social audit by the Gram Sabha: A District Internal Audit Cell in
the office of the District Programme Coordinator shall be constituted to scrutinize the
reports of the Gram Sabha and conduct a special audit, if necessary. A Monthly Report
will be compiled and sent to the District Programme Coordinator, State Programme
Coordinator and the State Government. These authorities will initiate action to address
serious irregularities and also take appropriate preventive action.

PHYSICAL AUDIT

A Physical Audit of the works undertaken will be conducted to verify the quality of works
and to check that the expenditures incurred have led to the creation of durable assets.

ACTION ON AUDIT REPORTS BY THE STATE GOVERNMENT

A copy of every Audit Report, whether conducted by the Chartered Accountant, the
Local Fund Auditor or the Internal Audit Cell and auditors of the Accountant General or
Comptroller and Auditor General, and Social Audit Reports will be sent to the State 49
Government concerned.
The State Government will ensure speedy action against the concerned officials/ nonof-
ficials for misappropriation of funds, frauds, incorrect measurement, false entries in the
muster rolls and other irregularities of a serious nature, resulting in the leakage of
Government/public funds/resources and the denial of entitlements to workers. The State
Government will also take appropriate steps to prevent such irregularities.

CITIZENS’ CHARTER
A model ‘Citizens’ Charter’ should be developed covering all aspects of the duties of
Panchayats and officials under the Act. The Citizens’ Charter should describe the
specific steps involved in implementing the provisions of the Act, and lay down the
minimum service levels mandated by these provisions on the Panchayats and the
officers concerned.

GRIEVANCE REDRESSAL

i) The Programme Officer will be the Grievance Redressal Officer at the Block level, and
the District Programme Coordinator at the District level.
ii) A system of appeal will be designed to deal with grievances at each level. Appeal
against the Gram Panchayat will be to the Programme Officer. Appeal against the
Programme Officer will be to the District Programme Coordinator. Appeal against the
District Programme Coordinator may be with an appropriate authority designated
by the State Government.
iii) Name and address of the petitioner, and nature and date of the petition, are to be
entered in a register, which will be uploaded on to the Internet on a weekly basis.
iv)The person registering the grievance is to be given a receipt with number and date so
that he/she can follow up the status of disposal of his/her grievance from a counter in
the office of the Programme Officer and over the Internet using the receipt number.
v) Once a grievance has been disposed of, the date and nature of disposal should be
communicated to the petitioner. These details are to be made available over the 50
Internet.
vi) Data generated by classifying petitions are to be analysed each month for region
and type so that it becomes a tool for identifying areas that require senior management
attention and redesigning of systems.
vii) All grievances will be disposed of within the time limit prescribed in the Act.
viii) Attention is drawn to grievances relating to items listed as ‘Mandatory Agenda’ for
the Social Audit Forum in Chapter 11 Section 6 of these Guidelines.
ix) Grievance redressal performance of all authorities under the Act and these
Guidelines are to be posted on the Internet on a weekly basis.
x) The Gram Sabha and the Social Audit Forum shall provide a forum for public
hearings so that grievances may be quickly redressed.

RIGHT TO INFORMATION AND PROACTIVE DISCLOSURE

xi) The State Government may designate an alternative Grievance Redressal Authority
at the Block, District and State levels.
xii) The State Government may consider setting up a system of Ombudsman at the
State and District levels, using people of proven integrity.
xiii) A Help Line may be set up for grievance redressal.
xiv) Action taken on the complaints received by the Programme Officer and the District
Programme Coordinator shall be placed before the meetings of the Intermediate
Panchayats and the District Panchayats respectively.
xv) State Governments will formulate rules for grievance redressal. In formulating Rules,
the following measures must be incorporated and in case Rules have been formulated,
these measures may be included, if not done already.
a. Complaints may be submitted in writing or orally.
b. Complaint boxes at conspicuous places in the offices of the Programme Officers and
District Programme Coordinators must be installed to facilitate submission of
complaints.
c. Complaints shall be entered in the complaint register and disposed within the
statutory time limit. 51
d. The complainants must also be informed of the action taken in writing.
e. Monitoring of disposal of the complaint must be done at the next higher level every
month.
f. There must be monthly disclosure of complaints in local newspapers.
g. Setting up a toll free help line must be considered.
h. A system of appeal must be considered.
i. A State level Officer must be designated to monitor the disposal of complaints in the
State.
j. Wide publicity must be made for grievance redressal at all levels.
k. Monthly Reports on complaints received and disposed must be sent from GP to PO
to DPC to State to Government of India and will also be entered on line in predesigned
formats of the Ministry.

POSSIBLE FRAMEWORK FOR A GRAM ROZGAR SEVAK

Possible responsibilities for the Gram Rozgar Sevak include the following:
(1) Maintaining all REGS-related documents at the Gram Panchayat level, including
prescribed accounts, and ensuring that these documents are conveniently available for
public scrutiny;
(2) Ensuring that the norms of transparency and “pro-active disclosure” are observed in
the Gram Panchayat;
(3) Overseeing the process of registration, distribution of job cards, provision of dated
receipts against job applications, etc.;
(4) Ensuring the smooth and timely .ow of information within the Gram Panchayat, as
well as between the Gram Panchayat and the Programme Officer (including weekly
provision of information on job applications to the Programme Officer);
(5) Overseeing job applications, allocation of work, payment of wages, payment of
unemployment allowance and other activities held on the weekly “employment
52
guarantee day” at the Gram Panchayat level, and being personally present on that day;
(6) Ensuring that the requisite Gram Sabha meetings and social audits are held;
(7) Providing any REGS-related information or advice that may be required by REGS
workers or other residents of the Gram Panchayat; and
(8) Any other duties that may be prescribed by the State Employment Guarantee
Council. If Gram Rozgar Sevaks are appointed in each Gram Panchayat, it is suggested
that the State Employment Guarantee Council should determine their job description,
minimum qualifications, and the process through which they should be appointed and
evaluated. The salaries of Gram Rozgar Sevaks should be met from the funds provided
by the Central Government for administrative expenses, possibly supplemented with
additional contributions from the State Government.

53
 54
National Rural Employment Guarantee Act -2005
 Ministry of Rural Development Govt. of India

NREGA (Department of Rural Development) 

Phone No.
Name  Phone No.Office  Fax No.  E-mail 
Resi. 
Ms. Amita
Sharma, JS 23385027,23384703  23384703  26883239   amita712@yahoo.co.uk
(NREGA) 
Sh. H.S. Dhillon,
23385027         
PS to JS 
Sh. Niten (0120)4274358
Chandra, 23388431  23388431  (Mob.) niten.chandra@nic.in
Director(NREGA)  9958445904
Sh. Krishna
Kumar, 23384338  23384338      
Director(NREGA)
Sh. S. K. Singh,
Director 23070129  23073727     
(NREGA) 
Dr. N. K. Sinha,
23389431        nk.sinha@nic.in
AC (NREGA)
Sh. Sube Singh,
23387366         
AC (NREGA)
Ms. Nirmala
Goyal, US 23070156     25506116   
(NREGA)
Sh. J. S.
Audhkhasi, US 23381709        audhkhasi.js@nic.in
(NREGA)
Sh. R. K. Sood,
55
23073787        
US (NREGA)
Sh. Vinod Kumar,
23070978         
US (NREGA)
Sh. Manoj Kr.
Sharma, SO 23387366         
(NREGA)
Sh. Dharam
Prakash, EO 23389431         
(NREGA)
Mrs. Renu Walia,
23387118         
EO (NREGA)

56
 RESEARCH METHODOLOGY

The Research specifies the information required to address needed issues, designs the
methods for collecting information, manages and implements the data collection
process analyzes and communicates the findings and their implications

57
The research methodology implemented in this research report primarily consists of
personal interviews with those who work in NREGA as a labor, and different concern
person.

Research Objective:

 To Understand and analyze the implementation of NREGA.

 To understand and analyze motto of Government behind this act.

 To improve the facility of NREGA

 Make aware to the general people towards this programme.

 To give a brief idea about the benefits of NREGA at the village level.

 To give an idea about the different schemes available through NREGA for the
development of rural area.

 To give a brief introduction about the beneficiary portion of the rural area.

58
 To understand about the actual condition of NREGA.
Research Design: Descriptive Research Design.

Data Collection: Primary and Secondary

Data Collection Instrument: Questionnaire and Personal Interview.

Sampling Design: Judgment Sampling

Sample Size: 150

Proposed Analysis Technique: Graphs and Charts

DESCRIPTION OF RESEARCH METHODOLOGY

Research Design:

Descriptive Research Design

RESEARCH DESIGN- Descriptive Research Design

Descriptive research includes surveys and fact-finding enquires of different kinds. The
major purpose of descriptive research is description of the state of affairs as it exists at
present. I have to move around the village and asked the people that whether they
works in the NREGA or concern persons.

59
Data Collection: Primary and Secondary
Primary Data was collected with the help of interviews conducted to the general
public, to those only in research area who works in NREGA. I asked them about their
works and the different aspects of NREGA and tried to know that whether they are
satisfied with it or not.

Secondary Data was collected from the NREGA’s database to know how many
workers works in the research area RAMPUR, DALAN CHHAPRA, MURLICHHAPRA,
DOKTI. Since the name, addresses of the workers were not available in the internet;
therefore an attempt was made to know all these details from the different websites.

Data Collection Instrument: Questionnaire and Personal Interview.

Questi onnaire: - Questionnaire is formal set of questions prepare to collect the

required information. This is one of the most effective and popular techniques used in
surveys. A structured questionnaire was constructed containing all those
types of questions by which estimation about the worker’s perceptions
about the different activity can be made quite easily. Through the
questionnaire I was in the condition to know about the ground work of
NREGA and the effectiveness of this ambitious program of UPA
government.

Personal interviews:

Personal interviews were taken from those people who is envolve in

NREGA anyhow either they are the workers or they have some
involvement through different activity in NREGA. They were also asked 60
questions related to this research work and that mention in questionnaire.
Sampling Design:

Judgment Sampling

Sample Size: 150

Proposed Analysis Technique:

Graphs and Chart

 

61
1-: How you are utilizing the money?

62
ANALYSIS: as per this data we can easily understand that many labors approx 80%
utilize their money in the daily utilization and only 6% of the labors invest their money for
their future so this data says that the persons are utilizing their money in other expenses
it means they may be either the persons who are closer of Gram Pradhan or Gram
Pradhan wants some profits by giving them more facility.

2-: Is this program providing 100 days work?

63
ANALYSIS: As the data shows that 85% labor is not satisfied with the NREGA
because this guarantee act is not providing 100 days works for the labors that are
dependent on this programme.

3-: Do you think that this program should be carried on?

64
ANALYSIS: As the 40% persons are still in dilemma about this programme because
either they waiting some goodness or they have no proper information about the
NREGA programme and their implementation.

65
4-: Is this programme beneficial for the rural work and workers?
ANALYSIS: According the data that has been collected by the different age group
and different persons who belong from the village they think that after coming the
NREGA act there is no positive changes at the village level and approx 30% is not clear
about their view.

66
5-: Do you agree that after implementing the NREGA rural areas are developing?
ANALYSIS: when different persons from the different demography is not agree that
NREGA is not playing the role of developer at the village level so we can also say that
if any development is looks on the paper then it is only on paper not in actual.

67
6-: Is payment system good?
ANALYSIS: According to the 72% labor they thinks that the system of payment is not
in the favor of labor because their wage of one day is already 100 rupees for a labor has
been in acted in the previous rules so they think if they already working on Rs 100 per
day then 1st it should be increases 2nd payment after 15 days is also not god and some
time it takes more time.

68
7-:Do you receive your wage after every 15th day ?
ANALYSIS: As the more labors approx 76% is facing the problem of payment of
wages after 15th day. During the collection of data many labors are complaining about
the regular payment rather there is no lack of money in the account of Gram Pradhan.
It means that delay of payment of the labors is just due to bad support of governance.

69
8-: Do you think wages are sufficient?
ANALYSIS: The above data shows that the approx 42% persons is not agree to give
any comment and approx 40% is not satisfied with the current wage only 18% is agree
by this wage payment because they are only card holders and receiving money without
doing any work. So whatever wages he is receiving is bonus for him due to this reason
this wage pattern and amount is looking good for him and approx 40% who are not
satisfying with this wage amount is want some increase in the amount just for his
maintain their living

70
71
 There should be transparency in the work.

 The wages should be distributed within time limit.

 As per the Guarantee Act of minimum 100 days work in a year should

be implemented in actual.

 The transparency should be in the filling of muster role.

72
73
 Lack of awareness in respondent.

 Uncooperative behavior of concern officer

 Misconception about the programme.

 Fear of government before providing correct knowledge

 Fear of power that if any labor provides any information that may be problem in

future by the Gram Pradhan and by their relatives.

74
75
Indian Govt. Information Ministry

Yojna (A monthly government magazine)

Kururshetra (A monthly government magazine)

www.google.co.in

www.nrega.nic.in

www.rural.nic.in

76